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Policy System and Political Dynamics of Heritage Conservation in the United States

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Policy System and Political Dynamics of Heritage Conservation in the United States POLICY SYSTEM AND POLITICAL DYNAMICS OF HERITAGE CONSERVATION IN THE UNITED STATES DISSERTATION Presented in Partial Fulfillment of the Requirements for The Degree Doctor of Philosophy in the Graduate School of The Ohio State University By Hyojung Cho, M.A. ***** The Ohio State University 2007 Dissertation Committee: Approved by Professor Margaret Wyszomirski, Advisor Professor Amy Horowitz l Professor Wayne Lawson Advisor Professor Georgianna Short Graduate Program in Art Education © Copyright by Hyojung Cho ABSTRACT This study investigates the policy system and political dynamics in heritage conservation at the federal level. Problems, such as dichotomy in heritage, dispersion of administration and authority, and conflicts, often impede the view of the whole field; therefore, I attempt to perceive different types of heritage policy and politics from a big perspective through mapping. Different actors and their programs in the U.S. federal government will be identified, and their roles, policy tools and goals and multiple values will be analyzed. Further, one of the goals of this research is to explore the relationships and impacts among the actors and to pay attention to the communication and collaboration of actors in policy formation and implementation in order to understand the policy making system and dynamics in the field. The U.S. government has developed heritage policy to allow for a minimized input of resources at the federal level while raising the symbolic visibility to maximize the policy impact: the diverse values of heritage tend to impact policy and programs goals, and the types of heritage they relate to wield influence over the chosen policy tools. ii DEDICATED To my parents, Soon Seon Lee and Kyoung Ho Cho iii ACKNOWLEDGMENTS Traditionally, Koreans believed people can be born with certain fortunes, and one of them is the good fortune to have good people. I certainly realized that I have that luck in my life. I have met wonderful professors, colleagues, and friends in the Ohio State University and owe my gratitude to many people who have made this dissertation possible. My pursuit of a doctoral degree would have been impossible without the perceptive guidance of my esteemed advisor, Dr. Margaret Wyszomirski. She has provided continual support and encouragement that helped me overcome several difficult times in my graduate study, and her insightful comments and constructive criticism made this dissertation possible. I was also very fortunate to have my exceptional doctoral committee and am grateful to Dr. Wayne Lawson, Dr. Georgianna Short, and Dr. Amy Horowitz. Although writing a dissertation was a lonely enduring process, their perceptive suggestions and guidance have been very valuable. I extend many thanks to my friends and colleagues. I wish to thank Jennifer Sciantarelli for reading my manuscripts and encouraging me. In Sul Kim and Jeong Eun iv Song have always provided incredible support to me. I only hope I could be such support to them as they pursue their own scholastic works. Most importantly, I need to acknowledge my family for supporting me: my parents and my brother who have believed in me and my husband, Min Lee, who infuses hope and love in my life. Lastly, I appreciate the late Isabel Barnett and Mr. Lawrence Barnett as well as Mrs. Toby Barkan Willits for their financial support and dedication to art and education. v VITA EDUCATION 2002-2007 The Ohio State University, Columbus, OH Cultural Policy and Art Administration 1998-2000 The George Washington University, Washington, DC M.A. in Museum Studies 1993-1998 Sang Myung University, Seoul, Korea B.A. in History AWARDS AND RECOGNITIONS 2006-2007 Manuel Barkan Fellowship for Dissertation Writing 2003-2004 Lawrence and Isabel Barnett Fellowship 1998 Columbia Arts and Sciences Scholarship 1993-1998 Sang Lok Scholarship for Academic Excellence (4 times) PROFESSIONAL EXPERIENCE 2005 The Ohio State University - Newark Art Gallery, Newark, OH Graduate Administrative Associate 2004-2006 The Department of Art Education, The Ohio State University, Columbus, OH Graduate Teaching Associate for Art Education 367.01- Ethnic Arts 2000-2002 National Women’s History Museum, Washington, DC Assistant Curator 2000 National Museum of American History, Washington, DC Volunteer in Collections Documentation Department vi 2000 National Museum of the American Indian, Washington, DC Intern in Collections Department 1999-2000 Freer and Sackler Gallery of Art, Washington, DC Intern in Education 1998 Kyunggi Provincial Museum, Kyunggido, Korea Intern, rotated in Curatorial, Registrar and Collections Departments PRESENTATIONS 2006 Presentation in Social Theory, Politics and the Arts, Vienna, Austria “The Policy System and Political Dynamics in the U.S. Heritage Conservation” 2005 Invited talk in the class Public Policy and the Arts, Columbus, OH “Heritage Conservation in the U.S.: History and Policy” 2005 Presentation in Social Theory, Politics and the Arts, Eugene, OR “Mapping Heritage Policy in the U.S.” 2004 Presentation in Social Theory, Politics and the Arts, Arlington, VA “Cultural Diplomacy between North and South Korea” FIELD OF STUDY Major field: Art Education Specialization: Cultural Resources Management / Policy and Administration in Heritage Conservation vii TABLE OF CONTENTS Abstract………………………………………………………...…………………….. ii Dedication……………………………………………………………………………. iii Acknowledgements……………………………………………………………….….. iv Vita…………………………………………………………………………………… vi List of Figures……………………………………………………………………...… xii Chapters: Chapter 1 Introduction………………………………..………………..………………………... 1 The Purpose of the Study…………………………….……………...………….... 3 Problem Statement……………………………………..………………….…...… 8 Dichotomy in Heritage: Tangible and Intangible Heritage…………….… 8 Conflicts, Competition and Selection: Values………..………………….. 11 Conflicts, Competition and Selection: Cultural Diversity…………..…… 13 Dispersion in Administration and Authority…………………………...… 14 The Need for the Study…………………………………………………………... 17 Methodology…………………………………………………...………………… 19 The Limitation of the Study……………………………………………………… 23 Chapter 2 Review of Literature…………………………………………………………………. 25 Philosophic Approaches on Heritage…………………………………………….. 25 Studies on Historic Preservation Effort in the U.S…...………………………….. 28 Studies on Intangible Heritage…………………………………………………… 32 Studies on Public Policy…………………………………………………………. 41 Chapter 3 Conceptual Outline…………………………………………………………………... 47 Perspective of the Study on Heritage…………………………………………….. 47 Choice of Terminology………………...………………………………………… 48 viii Defining Heritage policy…..……………………………………………………... 49 Identification of Actors and Their Programs…………..………………………… 51 Framework for Analysis………………………………………..………………... 55 Types of heritage………………………………………...……………..… 55 Institutional Settings………..………………………………….………… 57 Core Values in Heritage…………...………………………...…………… 58 Political value……………………………...……………………….… 59 Preservation value……………………….………………………….... 61 Economic value………...…………………………………………..… 62 Artistic/Aesthetic value……………………………………………..... 62 Policy Types and Tools…...……………………………………………… 64 Direct government………………...……………………………….… 68 Grant distribution……………………………...……………….……. 68 Regulations………………………………………..…………………. 69 Dynamic elements………………...……………………………………… 70 Players Relationship in Policy Process……………...…………………… 71 Resources………………………………………………………………… 72 External Pressures………………………………………………………... 74 National environment……………………………………………….... 74 International environment………………………………………..…... 75 Chapter 4 Value Mechanism and Policy System in Tangible Heritage………………………… 78 Definition of Tangible Heritage………………………………………………….. 78 Issues in Tangible Heritage………………………………………………………. 81 Need of a Better Definition…………………...………………………….. 82 Registration of Historic Properties……...………………………………... 83 Historic Preservation as Liability………………………………………… 85 Rethinking Economic Benefits of Conservation…………………………. 86 Core Values in Conservation in Tangible Heritage……………………………… 88 Political Value……………………………………………………………. 89 Economic Value………………………………………………………….. 91 Preservation Value……………………………………………………….. 94 Political Tools in Conserving Tangible Heritage………………………………… 94 Direct Government for Conservation of Tangible Heritage……………... 95 Incrementalism in NHPA………………………………………………… 98 Grant Distribution to Support Tangible Heritage………………………... 102 Regulatory Tools to Support Tangible Heritage…………………………. 107 Redistributive Tool to Support Conservation of Tangible Heritage..……. 112 Constituent Tools to Support Conservation of Tangible Heritage……….. 114 Off-budget Programs……………………………..……………………… 116 Chapter 5 Players and Political Dynamics in Tangible Heritage………………..……………… 121 ix Institutional Settings…………………………………………………………...… 122 Players in Tangible Heritage Policy and Subgovernments………………………. 124 Policy Makers……………………………………………...…………….. 126 President…………………………………...…………………..…. 126 Congress…………………………………………...…………..…. 128 Courts………………………………………………………..…… 132 Administrators……………………………………………………………. 134 Department of the Interior……………………………………….. 134 National Park Service…..………………………………………... 137 Department of Transportation…………………...……………..… 144 Department of Housing and Urban Development……………..… 147 Advisory Council on Historic Preservation……………………… 151 General Services Administration……………………………….... 154 Partners………………………………………………...………………… 158 White House…………………………………………………….... 158 State Historic Preservation Officers…………………………….... 163 National Trust for Historic Preservation…………………………. 165 Emphasis on Partnership………………………………………………….
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